Records management consultancy service in Zimbabwe: The consultants’ view

Records management challenges in Zimbabwe

Records being documents or other items containing recorded information which are produced or received as part of a business activity (Parker, 1999) exist at the heart of an organisation and play pivotal and strategic roles in ensuring accountability and good governance (Hughes, 2003; Ndenje- Orr, 2008; Shepherd and Yeo, 2003; Sichalwe et al., 2011). Records management is the systematic process of implementing a set of tools and guidance that enable an organisation to locate and retrieve the right information in the right format by the right person at the right time at the lowest possible cost, with the least amount of effort (Wythe, 2007).

National archival institutions have the mandate to ensure the proper management of public records, and promote their preservation and accessibility (Akotia, 2003; Chaterera et al., 2013). As outlined by the National Archives of Zimbabwe Act (1986) Sections 5 and 6 the National Archives of Zimbabwe is mandated with the responsibility to manage public sector records (Murambiwa et al., 2012; Mutsagondo and Chaterera, 2014; Ngulube, 2012). Besides empowering the Director of the National Archives of Zimbabwe to specify any public record to be of enduring value, the Act states that the Director may inspect the records of a government Ministry, advising on the filing, maintenance, and preservation and transfer to the National Archives of the records of that Ministry and give instructions with regard to the retention or destruction of the records of that Ministry. All the activities are done by the records managers and archivists on behalf of the Director. In addition, all six National Archives of Zimbabwe Records Centres provide records and information services to mainstream government departments, parastatals and local authorities in their respective provinces. Such services can be equated to consultancy. However, due to the size of the public sector departments for which National Archives of Zimbabwe services are required, it seems National Archives of Zimbabwe is overwhelmed. While consultancy is about problem solving, it is also about the process of creating change and managing change by those with special skills and special expertise such as records managers and archivists who add value to everything that the consultancy does for its clients.

Records management in Zimbabwe is still in a poor state with members of the public often failing to access government services or facing unnecessary delays due to missing and/or misplaced documents (Chaterera et al., 2013). While the free records surveys conducted by the National Archives of Zimbabwe archivists assist in harnessing and fostering the proper management of public records (Chaterera et al., 2013; Dewah, 2010; Dewah and Mnjama, 2013; Maboreke 2007), private organisations in Zimbabwe are left to consult records management service providers for a fee.

Records management in Zimbabwe has largely been marginalised with private organisations not employing qualified records personnel, but preferring to place records management in such sections as human resources and administration. All this at times compromises the management of corporate records. In some cases receptionists and general hands double as records personnel (Noko and Ngulube, 2013) and at times are overwhelmed by some problems of great magnitude that require an individual with better records management qualifications. It then means that in Zimbabwe records management problems that require consultancy services include those general records management problems such as: poor filing systems/misfiling; missing/misplaced files; challenges in file tracking; disregard of records management discipline; absence of a records management policy and procedures manual to guide record keeping activities; lack of top management support/appreciation of records management profession; poor security and storage system; absence of a disaster preparedness and recovery plan; poor housekeeping issues to avoid damaged records; uncontrolled entry in to the registry/records room; underfunding of the registry; duplication of personal records; poor disposition of records; poor record classification; indexing and labelling; absence of a retention and disposal schedule; incomplete records; poor preservation strategies and lack of back up electronic records system, among other challenges. A tracer study of National University of Science and Technology alumni who graduated between 2008 and 2012 indicated that 67% of the records and archives graduates are employed in the parastatals, while some organisations in industry did not appreciate the essence of the records and archives management profession (Noko and Ngulube, 2013). As a cost-cutting measure on the wage bill some Zimbabwean public and private organisations avoid employing a full-time records manager, preferring the services of consultants who will do a job as a one off.

Extant literature (Katundu, 2002; Luyombya and Bukirwa, 2013; Mnjama, 2004; Ndenje-Sichalwe et al., 2011; Okello-Obura, 2012; Orr, 2008; Shepherd and Yeo, 2003) has indicated that there are still a lot of records management problems in both private and public organisations. Such problems can be addressed through recruiting professional records managers or engaging consultancy services. Ngoepe and Ngulube (2013) are of the view that well-managed records provide the framework for the management of all other resources.

The need for records management consultancy services in Zimbabwe

Records consultancy experts were asked to explain why they established a records consultancy company in Zimbabwe. Results revealed that one (Records Consultant A) was formed ‘in 1988 to meet a need that seemed to be there in the private sector for records management consultancy services’. Records Consultant B indicated that the company was established because ‘private organisations presented an untapped archival market so the company was formed to cater for corporate organisations in the country who require records management services’. The establishment of records management consultancies in Zimbabwe confirms the reasons stated elsewhere behind the formation of such companies as Archive-Skills Consultancy Ltd (Crockett, 2014; Gold, 1995) with the same focus.

Records management problems

From their experience in conducting records management surveys in the public sector, National Archives of Zimbabwe archivists were asked to identify the problems of records management that they had noted and are common in the public sector. Respondents indicated that there were a plethora of challenges that included: lack of training for those manning the registries; shortage of shelving equipment; inadequate filing and shelving space and stationary; lack of top management support; financial constraints that hamper the implementation of records management programmes; lack of retention and disposal schedules; poor security system of records from environmental factors such as excessive sunlight, dust, temperature; no disaster management plans; no records management policies; no vital records management programmes; failure to transfer records to records centres.

The Principal Archivist pointed out that:

semi-current and non-current records are dumped in store rooms, records are managed by untrained people such as secretaries, there is shortage of basic infrastructure needed to manage records such as shelves.

The problems identified in this study were similar to those identified in studies that were conducted elsewhere. For instance the findings confirm what Katundu (2002), Mnjama (2004), Ndenje-Sichalwe et al. (2011), Orr (2008) and Shepherd and Yeo (2003) pointed out in earlier studies. Qualified records personnel are capable of dealing with such problems, but private organisations in Zimbabwe prefer to engage consultants rather than have someone appointed on a permanent or contractual basis.

Chief Archivist 1 listed a number of problems:

departments do not have enough space to keep their records; no filing equipment; bad storage conditions; records are not secure from unauthorised access to registries, i.e. No Unauthorised entry notices to registries; food consumption is taking place in registries; absence of routine fumigation (to keep rodents and pests at bay) because of budgetary constraints; haphazard electronic records management.

Chief Archivist 2 mentioned such problems as:

poor filing systems, poor records storage conditions, untrained records handlers, records offices operations poorly funded, non-compliance with records policies and standards, disorderly heaps/piles of non-current and semi-current records, unawareness of retention/disposal schedules policy.

As in the current study, Pendergraft and Pemberton (1998) cited in Hughes (2003) and Kaima (1999) found similar records management problems/challenges in their studies.

Views on the need for records management consultancy services in Zimbabwe

As a means to find out the consultants’ views on the need for a records management consultancy service in Zimbabwe, respondents were asked whether such a service was required in the Zimbabwean information sector. It was discovered that there is need for records consultancy services though the challenge is to quantify the need. Records Consultant B explained that the need arises because

most organisations in the country do not have purpose built facilities for records and the expertise to manage records.

Archivist 2 noted that:

the National Archives of Zimbabwe is overwhelmed and lacks in terms of resources (human and financial) and expertise while consultancies might have in areas like Information and Communication Technologies and Electronic Records Management.

In the Principal Archivist’s view:

records consultancy services are required because generally it seems that records management is not a well understood concept and some employers do not see its value or they are not aware of it.

Archivist 3 concurred:

There is gross ignorance especially in public sector organisations about the principles and standards that promote good records management. The problem is further worsened by the failure of the government to adequately fund records management programmes to enable records centres to expedite a comprehensive records management programme that would equip registry clerks and supervisors with better records management skills.

This confirms Matangira’s (2012) observation that records staff need to gain skills through specific training programmes. Archivist 4 argued that:

there is need for records consultancy in order to fill the knowledge gap among records management practitioners through hiring records management consultancy.

Chief Archivist 1 argued that:

records management consultancy was required because the National Archives of Zimbabwe is mandated to govern public sector records only whereas the private sector also needs guidance and assistance on how to manage information properly for accountability.

Chief Archivist 2 opined that records consultancy was needed in Zimbabwe

considering that the National Archives of Zimbabwe Act (1986) does not cover private entities.

Besides doing their business in Zimbabwe, Records Consultant A revealed that their company services were provided in such countries as Malawi, Tanzania, Rwanda, Kenya, Ethiopia, Ghana, the Caribbeans (Jamaica, St Kitts and Nevis, Grenada), Namibia and Zambia. Records Consultant B indicated that their organisation has provided consultancy in Malawi for filing systems as well as offsite and onsite records centre facility services. Taking services across the borders is not peculiar to private consultants in Zimbabwe. The IRMT (2015) has conducted consultancy projects in various countries.

How records management is regarded in Zimbabwean public organisations

One of the objectives of this study was to ascertain the perception of heads of departments and chief executive officers on records management as a profession in Zimbabwe’s public and private organisations. Drawing from their experience with records management work in Zimbabwe, records consultants were asked to give their inferences and opinions on how records management is regarded by company management or top management in both private and public organisations. Regarding perceptions of top management in the public sector, Records Consultant A said:

While records management functions exist in all government institutions, little priority is given to records management and most are poorly resourced.

As for the private sector, the same respondent further said that:

the private sector in general does not pay attention to records management needs. However, the last few years have seen a sizeable number of institutions appoint records managers especially banks.

Records Consultant B revealed that:

the private sector now appreciates the importance of records management and express interest in the services though financial constraints are often cited.

Archivists were asked to give their perceptions on how heads of government departments regard records management judging from their experiences with records management at the National Archives of Zimbabwe. Archivists presented a common front that indicated that heads of government departments were not in total support of records management. Responses included:

most heads of government departments are not committed to address problems bedevilling their registry processes. They look down upon records management yet records support their major functions; heads of departments place very little value on records management; records management is not seriously considered as a profession; records management is regarded as an inferior profession to other professions.

The Principal Archivist said:

Heads of government departments were not taking records management seriously assuming that anyone can do it. They do not notice the archival value of records but are concerned with current records only.

Chief Archivist 1 was of the opinion that:

records management was regarded as not very important but heads attach importance when they need retrieval of some information. Resource priority in this sector is very much compromised.

Chief Archivist 2 noted that:

while records management is regarded as important the heads of government departments poorly fund record offices and this has frustrated some trained personnel who leave the government for other private enterprises.

The observations by consultants suggest that records management as a profession is marginalised in Zimbabwe. It may also be indicative of poor visibility of the discipline confirming Noko’s and Ngulube’s (2013: 279) assertion that:

the records and archives management programme was not well-marketed to the industry, and some organizations in the private sector were not aware of the importance of records and archives management as their secretaries performed records and archives management duties, despite the fact that they were not fully trained in that regard.

Another objective was to establish how conducive or feasible records consultancy work in Zimbabwe was. It emerged that records consultants observed that there was need for records consultancy though the economic climate was prohibitive. Consultant A indicated that it was

not really conducive because records management takes a back seat when economic challenges arise.

Archivists presented varied perceptions with regards to conduciveness of the Zimbabwean society for records consultancy work. Archivist 1 argued that:

it was not conducive because the National Archives of Zimbabwe has a monopoly over records created in the public sector and as such consultancy companies’ involvement in government institutions is limited.

Archivist 2 saw an opportunity for consultancy companies and argued that:

the limitations and challenges facing the National Archives of Zimbabwe dictate that a consultancy be established. Besides the majority of consultancy companies are more ICT focused than general records management oriented.

Archivist 3 concurred and said Zimbabwean society was conducive to records consultancy given that:

there are a lot of challenges in managing electronic records. The paper-based systems are in disarray and the registry system is collapsing. Public records are to a larger extent managed by untrained personnel.

Archivist 4 agreed that it is conducive

because there is demand for training services by records management practitioners.

The Principal Archivist argued that Zimbabwean society provided an environment conducive to carrying out records management consultancy work

because it seems to be a fertile market which has not been fully exploited.

Chief Archivist 1 concurred that Zimbabwean society was conducive ‘to service the private sector mostly’. The opportunities presented in both private and public organisations for consultancy work confirm what Baaij (2014) referred to as hired hand providing temporary capacity for an understaffed organisation.

Level of professionalism in records management

With regards to records management professional associations in Zimbabwe, records consultants were familiar with the Records, Archives and Information Management Association of Zimbabwe (RAIMAZ) though they described it as ‘inactive’; ‘not active though’ and ‘still in its resurrection stage’. Archivists added the Records and Archives Management Society of Zimbabwe (RAMSOZ) as another records management professional association in Zimbabwe.

It emerged that professional training in records management is taking place in tertiary institutions such as polytechnic colleges and universities that include the National University of Science and Technology (NUST), Midlands State University (MSU) and Zimbabwe Open University (ZOU). Some short courses are offered at the Highlands Training Centre. This has also been confirmed by Noko and Ngulube (2013: 280) who note that ‘universities, various polytechnic colleges in Zimbabwe offer national certificates, national diplomas and higher national diplomas in RAM’.

Challenges to records consultancy work

One of the objectives of the study was to identify the obstacles to records consultancy that existed in Zimbabwe. Respondents were asked to indicate challenges in records consultancy work that a consultant would encounter in Zimbabwe. In response to this question Records Consultant A bemoaned ‘a small size of the market’ as a major obstacle and yet the other challenge mentioned was that ‘the potential clientele has no money for records projects’. Records Consultant B indicated that in Zimbabwe the major challenge was

financial limitations on prospective clients as well as resistance to change to engage consultancy service providers since they consider it as outside corporate cultures [sic].

Records Consultant C revealed that in Zimbabwe

decision makers are not aware of the importance of records management services.

Archivists indicated that the National Archives of Zimbabwe monopoly on the management of public sector records makes it difficult for consultancy companies to penetrate the public sector. Archivist 1 opined that:

consultancy companies have not been able to venture into the outskirts and provinces of Zimbabwe may be because of poor marketing.

Archivist 2 observed that:

registration of a new company is a long and tiresome process in Zimbabwe, besides financial challenges, since the macroeconomic environment is not very conducive to starting new ventures. Breaking into the market where some early consultancies have made a name may be extremely difficult.

Archivist 3 revealed that:

there is low business because most senior managers do not value records management; there are high operational costs in the country for most organisations and challenges may include high costs for registering the firm and a lot of red tape in the process.

Archivist 4 observed that:

most departments are facing financial challenges such that they cannot afford to hire consultants. The other challenge has to do with attitude of heads who think that hiring consultants for records management issues is a waste of resources. The other issue is that most of the records consultants are based in Harare and as such are not visible in other parts of the country.

The Principal Archivist noted that: ‘Legally, National Archives of Zimbabwe has the monopoly over management of public sector records such that the consultant will face serious legal challenges’, a view that was shared by the Chief Archivist. The private consultants may be prosecuted by the National Archives of Zimbabwe on behalf of the government of Zimbabwe for conducting records consultancy work in public sector organisations. The National Archives of Zimbabwe has the sole mandate of overseeing the management of public sector records as spelt out in the National Archives of Zimbabwe Act (1986). The Principal Archivist further argued that:

consultant may have few clients because of perceptions of not seeing the importance of records management.

Chief Archivist 1 was of the view that: ‘records management is not very much given the importance that it needs’ and as such consultancy work may not be viable.

Further, Chief Archivist 2 observed serious obstacles as:

penetrating into public sector may not be easy; high employment and operation costs may result in high charges for the services; National Archives of Zimbabwe Act monopolises the records management services for all government, parastatals and local authorities leaving no room for consultancies.

With regards to challenges in other countries other than Zimbabwe, Consultant A revealed that ‘obtaining information on available opportunities was difficult’. As for obstacles in other countries, Records Consultant B indicated that ‘limited knowledge about records consultancy’ was a problem.